• 


347 
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Report  on  Relief 

•*•  i 


OF 


Destitute   Unemployed 


1914-1915 


TO  HIS  EXCELLENCY 


Governor  Hiram  W.  Johnson 


The  Commission  of/Jjnmigration  and  Housing 
of  California 


JUNE  TWENTY-FIFTH,  1915 


CALIFORNIA 

STATE  PRINTING  OFFICE 
1  !>  1  5 


Report  on  Relief 


OF 


Destitute  Unemployed 

1914-1915 
TO  HIS  EXCELLENCY 

Governor  Hiram  W.  Johnson 


BY 

The  Commission  of  Immigration  and  Housing 
of  California 


JUNE  TWENTY-FIFTH,  1915 


CALIFORNIA 
STATE  PRINTING  OFFICE 

1915 
17903 


Commission  of  Immigration  and  Housing  of  California 

UNDERWOOD    BUILDING 
525  MARKET  STREET,  SAN  FRANCISCO 


COMMISSIONERS  : 

SIMON  J.  LUBIN,  President,  Sacramento 

MOST  REV.  EDWARD  J.  HANNA,  D.D.,  Vice  President,  San  Francisco 
MRS.  FRANK  A.  GIBSON,  Los  Angeles 
J.  H.  McBRIDE,  M.D.,  Pasadena 

PAUL    SCHARRENBERG,    Secretary,    San    Francisco. 

GEO.  L.  BELL, 

Attorney  and  Executive  Officer 


OFFICE  OF  THE  COMMISSION  OF  IMMIGRATION  AND  HOUSING  OF 

CALIFORNIA 

UNDERWOOD  BUILDING 

SAN  FRANCISCO,  June  20th,  1915. 
To  His  Excellency,  HIRAM  W.  JOHNSON, 
Governor  of  California. 

SIR:  We  beg  to  submit  herewith  a  report  of  the  work  done  by  this 
Commission,   at   your  request,   in   connection   with  the   relief  of  the 
unemployed  during  the  winter  of  1914-15. 
Respectfully  yours, 

SIMON  J.  LUBIN,  President, 

E.  J.  HANNA,  Vice  President, 

MARY  S.  GIBSON, 

J.  H.  MCBRIDE, 

PAUL  SCHARRENBERG,  Secretary. 

Commissioners. 


INTRODUCTION 


On  December  9,  1914,  the  Commission  submitted  to  the  Governor  a 
report  on  the  general  problem  of  unemployment.  That  report 
embodied  conclusions  and  recommendations  which  were  made  after  a 
year  of  study  and  investigations  undertaken  at  the  request  of  the 
Governor.  In  addition  to  recommendations  looking  toward  the  elimina- 
tion of  unemployment  and  the  solution  of  the  industrial  problem,  the 
Commission  made  certain  suggestions  concerning  the  alleviation  of 
suffering  and  want — the  more  immediate  problem  of  unemployment. 
The  substance  of  these  latter  suggestions  is  contained  in  the  following 
extract  from  the  report: 

Suggestions    for    a    Method    of    Dealing    with    the    Destitute    Unemployed    During    the 

Winter   of   1914-15. 

An  entirely  separate  and  distinct  problem  is  the  question  as  to  how 
to  handle  the  unemployed  of  the  state  during  the  coming  winter.  There 
is  every  indication  that  we  shall  have  many  roving,  unemployed  and 
destitute  men  in  the  state. 

Since  any  possible  state  legislation  looking  toward  an  alleviation  of 
the  situation  could  not  become  effective  in  time  to  meet  the  needs  of  this 
winter,  the  burden  of  the  problem  must  rest  upon  the  different  communi- 
ties and  municipalities,  and  they  must  deal  with  the  problem  locally. 
However,  we  deem  it  advisable  that  some  uniformity  should  be  estab- 
lished in  the  method  of  handling  the  various  unemployed  groups,  and 
therefore  suggest  that  some  existing  state  board  or  a  special,  representa- 
tive committee,  to  be  appointed  by  your  Excellency,  undertake  the 
formulation  of  some  plan  of  action  and  urge  the  adoption  of  the  plan  by 
the  various  authorities. 

Merely  as  a  tentative  suggestion  we  submit  the  following  general 
program  which  such  a  state  board  or  committee  might  follow: 

I.  It  is  essential  that  the  various  local  authorities  be  first  impressed 
with  the  fact  that  the  practice  of  driving  the  unemployed  out  of  one 
town  and  on  to  the  next  is  not  a  solution  but  an  aggravation.  It  has 
been  the  custom  to  employ  these  tactics  in  the  past,  and  this  treatment 
has  resulted  in  the  development  of  a  spirit  of  rebellion  and  anarchy 
in  the  unemployed,  leading  them  to  form  into  roving,  incorrigible 
"armies."  Merely  passing  these  "armies"  on  from  one  town  to  an- 
other creates  a  vicious  circle  throughout  the  state  and  encourages  the 
members  in  the  acquisition  of  wandering,  irresponsible  habits.  These 
restless,  roving  groups  are  breeding  places  for  petty  crimes,  and  the 
problem  of  prevention  and  control  by  the  state  is  made  more  difficult 
because  the  offenders  are  transient  and  ever  moving. 

Therefore  each  municipality  or  community,  in  proportion  to  its 
population  and  facilities  for  charity  work,  should  bear  the  burden  of 
providing  for  the  immediate  needs  of  the  unemployed  in  the  state 
during  the  coming  winter. 

2—17903 


6  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

II.  However,  after  the  local  authorities  are  persuaded  to  aid  in  the 
attempt  to  stem  the  restless,  swaying  tide  and  to  establish  some  sem- 
blance of  stability,  careful  and  discriminating  methods  must  be  worked 
out  for  providing  relief. 

The  mere  announcement  that  all  California  municipalities  are  to 
care  for  the  unemployed  would  bring  hordes  of  applicants  for  charity 
from  all  the  western  states,  eager  to  spend  a  winter  in  our  mild 
climate,  and  many  who  are  not  in  genuine  need  would  be  tempted  to 
try  their  luck  at  enjoying  our  munificence.  In  order  to  provide 
against  such  a  predicament  any  scheme  that  is  devised  to  meet  the 
situation  should  include  the  strict  application  of  a  work  test.  The 
board  or  committee  which  your  Excellency  might  designate  to  handle 
this  matter  could  render  incalculable  service  to  the  state  by  carrying 
on  a  nation-wide  campaign  of  publicity,  warning: 

(a)  The  employable  unemployed  that  there  is  no  work  to  be  had  in 
California;  and  (6)  the  unemployable  vagrants,  that  there  will  be  a 
rigorous  application  of  the  work  test  in  all  relief  or  aid  provided. 

III.  As  a  basis  for  discussion  and  action  by  any  board  or  com- 
mittee your  Excellency  might  appoint  to  put  in  operation  a  uniform 
plan,  as  we  have  suggested,  we  submit  the  following  concrete  sugges- 
tion: 

(a)  The  city  council,  or  governing  body,  in  every  incorporated 
city  or  town  should  be  urged  to  establish  a  municipal  lodging  house, 
furnishing  sleeping  quarters  and  food. 

1.  All  homeless  and  destitute  men  in  the  community  who  apply 
voluntarily  should  be  furnished   accommodation  in  return  for  work 
for  a  certain  number  of  hours  a  day.     Provision  should  be  made  for 
registering  all  these  unemployed  and  destitute  men  by  a  given  date. 
This  would  give  a  census  and  set  a  time  limit  for  applicants.     The 
work  referred  to  could  be  in  the  form  of  labor  on  the  streets  and  roads, 
cleaning  up  vacant  lots,   work  in  public  buildings  and  institutions, 
etc.     The  result  of  this  work  would  not  meet  the  cost  to  the  munic- 
ipality, but  the  cost  of  caring  for  these  men  must  ultimately  be  borne 
by  some   organization   or   individuals,    and  the   loss   would   be   more 
equitably  distributed  than  if  it  were  placed  upon  the  private  charitable 
agencies  or  philanthropic  individuals,  who    (as  we  point  out  below) 
have    a    sufficiently    difficult    task    in    caring    for    destitute    resident 
families. 

2.  All  homeless  men  who  are  brought  into  court  and  convicted  as 
vagrants,  merely  because  they  have  no  means  of  support,  should  be 
given  suspended  sentences  and  sent  to  the  municipal  lodging  house, 
and  also  put  to  work.     If  such  men  break  this  semi-parole  they  should 
be  sent  to  jail  and  put  at  enforced  work. 

(&)  The  associated  charities  of  the  different  communities  should 
be  awakened  to  the  critical  problem  at  hand  and  urged  to  organize 
carefully  for  the  coming  season.  These  organizations  should  be  advised 
to  provide  adequate  funds,  and  organize  volunteer  personal  service  to 
care  for  destitute  resident  families.  The  attention  of  these  private 
organizations  should  be  directed  entirely  to  the  needy  residents,  and 
only  incidentally  should  they  aid  the  municipality  in  providing  for 
the  homeless  destitute. 


EEPORT    ON    RELIEF    OF   DESTITUTE    UNEMPLOYED.  7 

(c)  In   those  cities  that  have  no   associated  charities  organization 
(such  as  Sacramento)  strong  pressure  should  be  brought  to  bear  upon 
the  citizens  to  organize  one. 

(d)  Specialized  charities,  churches,  social  settlements,  etc.,  should 
be  urged  to  make  additional  efforts  to  meet  the  emergencies  of  the 
season  and  to  continue  the  work  in  their  distinct  fields  with  redoubled 
efforts.     Past  experience  has  shown  that  such  organizations  are  apt  to 
become  panic-stricken  and  to  even  curtail  their  work  and  throw  it  off 
on  larger  and  more  general  organizations. 

(e)  Looking  more  toward  industrial  relief  measures,  all  state  and 
local  public  departments  should  be  encouraged  to  enlarge  their  work 
wherever   possible,   such   as  state   highway   and   county   construction, 
sewer  construction,  erection  of  public  buildings,  etc.     The  commence- 
ment of  public  work  for  which  appropriations  have  been  voted  might 
be  hastened;  and  public  work  which  is  usually  done  in  the  summer 
season  might  be  done  in  the  winter,  where  the  climate  permits.    *    *    * 

On  December  15,  1914,  the  Governor  endorsed  the  plan  and  requested 
the  Commission  to  undertake  the  task  outlined  therein.  The  Com- 
mission immediately  employed  Mr.  George  L.  Melton  of  Pasadena,  as 
special  agent  to  handle  this  work  and  instituted  a  vigorous  campaign 
to  secure  the  co-operation  of  the  municipalities  in  putting  this  sug- 
gested uniform  plan  into  operation.  Mr.  Melton  devoted  about  three 
months  to  this  work  and  this  report  is  based  upon  his  report  to  the 
Commission.  This  work  was  necessarily  planned  more  or  less  hastily, 
and  undertaken  in  an  emergency  to  meet  a  temporary  but  pressing 
need.  However,  in  the  following  pages,  a  brief  account  is  rendered 
with  the  belief  that  it  will  point  out  the  advantages  of  a  uniform  and 
state- wide  plan  in  this  relief  work,  and  with  the  hope  that  it  may  offer 
some  suggestion  for  future  action  in  dealing  with  this  ever  recurring 
problem. 


COMMISSION  OF  IMMIGRATION  AND  HOUSING. 


REPORT 


Even  without  accurate  data  upon  which  to  base  conclusions  the 
Governor  and  the  Commission  of  Immigration  and  Housing  realized 
that  during  the  winter  of  1914-15  California  would  be  called  upon  to 
support  an  even  greater  number  than  usual  of  unemployed.  Pre- 
vailing economic  conditions  would  render  idle  many  residents  of  the 
State  ordinarily  employed  while  the  same  conditions  existing  through- 
out the  country  would  add  to  the  army  of  unemployed  yearly  attracted 
by  California's  climate.  Added  to  these  probabilities,  the  Expositions 
in  San  Francisco  and  San  Diego,  suggesting  possibilities  of  employ- 
ment, would  serve  as  an  open  inducement  to  many  others. 

When  requested  to  take  charge  of  the  campaign  in  behalf  of  the 
relief  of  the  unemployed,  the  Commission  found  itself  confronted  by 
two  tasks.  First,  it  was  at  once  apparent  that  necessary  steps  should 
be  taken  to  prevent  the  unemployed  of  the  eastern  and  central  states 
from  coming  to  California  and  adding  to  her  already  heavy  burden. 
This  result  was  obtained  by  means  of  a  press  campaign,  vigorously 
executed,  whereby  the  migratory  population  of  the  eastern  and  central 
states  were  determinedly  informed  that  California  offered  no  special 
inducements  to  those  who  came  here  expecting  to  exist  upon  public 
bounty,  and  that  little  or  no  work  was  to  be  had.  This  action  by  the 
Commission  resulted  in  protecting  the  state  from  many  who  would 
have  been  but  objects  of  charity,  yet  who  would  have  had  no  claim 
upon  our  people. 

The  second  task  confronting  the  Commission  was  to  put  into  opera- 
tion the  plan  for  aiding  the  various  classes  of  unemployed  already 
here.  To  be  effective,  this  assistance  must  be  rendered  without  delay, 
it  must  avoid  charity  wherever  possible — this  both  for  the  better- 
ment of  the  individual  requiring  aid  and  for  the  good  of  the  community. 
The  plan  must  be  comprehensive  enough  to  cover  the  entire  State,  yet 
sufficiently  elastic  to  permit  local  adaptions.  Lastly,  it  must  not  be  a 
burden  upon  a  particular  community. 

The  province  of  the  Commission  was  to  present  to  the  local  authori- 
ties the  plan  which  had  been  submitted  to  and  approved  by  the 
Governor,  and  to  advise  them  regarding  the  best  methods  for  adapting 
it  to  local  needs  and  carrying  it  into  effect.  To  the  local  communities 
was  left  the  task  of  putting  the  project  into  operation. 


REPORT    ON    RELIEF    OP    DESTITUTE   UNEMPLOYED. 

I.     ACTION   TAKEN   BY   THE   VARIOUS    COMMUNITIES 
(A)     Northern    California 

On  investigation,  conditions  in  the  northern  portion  of  the  State 
proved  to  be  much  better  than  anticipated,  though  the  situation  looked 
gloomy  in  December.  Due  probably  to  the  gloomy  outlook  early  in  the 
season,  the  migratory  element  largely  moved  southward,  greatly  relieving 
the  northern  communities,  but  at  the  same  time  emphasizing  the  problem 
in  the  south.  Northern  conditions  were  also  further  remedied  by  the 
unexpected  opening  up  for  winter  work  of  the  lumber  mills  in  the 
vicinity  of  Eureka  and  of  mines  in  the  Redding  district. 

The  Commission  corresponded  with  the  officials  in  Redding,  Red 
Bluff,  Chico  and  Marysville,  and  a  representative  later  made  investiga- 
tions among  the  unemployed  in  these  communities  and  conferred  with 
the  local  authorities.  Although  there  were  no  larger  unemployed 
groups  in  these  districts,  and  the  problem  was  comparatively  small, 
the  authorities  evinced  a  willingness  to  work  in  co-operation  with  the 
larger  cities  in  following  the  uniform  plan  of  furnishing  relief. 

(B)     Central  California 

In  the  central  portion  of  the  State  the  presence  of  larger  cities — • 
which  always  attract  the  man  out  of  work — was  expected  to  produce 
an  even  more  serious  condition;  the  additional  attraction  of  the  San 
Francisco  Exposition  being  an  added  problem. 

On  December  16,  1914,  therefore,  a  conference  of  the  mayors  of  the 
cities  of  central  California  was  held  in  San  Francisco  to  consider  their 
problem  of  unemployment  during  the  coming  winter  months.  At  this 
meeting  were  representatives  from  San  Francisco,  Oakland,  Sacra- 
mento, Alameda,  Berkeley,  Stockton,  Emeryville,  Hayward,  Richmond, 
and  San  Jose;  the  president  of  the  Commission  also  being  present  as 
the  special  representative  of  the  Governor,  who  was  unable  to  attend. 
A  subsequent  meeting  was  held  on  December  22d,  at  which  time  was 
adopted  substantially  the  program  outlined  by  the  Commission.  The 
cities  represented  were  pledged  to  stop  the  practice  of  "floating  on" 
the  destitute  unemployed,  and  to  follow  this  uniform  plan  of  relief 
work. 

As  a  result  of  these  meetings  and  the  subsequent  assistance  given 
by  the  Commission  of  Immigration  and  Housing,  effective  work  along 
the  lines  agreed  upon  has  been  carried  on  in  all  but  two  of  the  cities 
represented  at  the  San  Francisco  conference.  Later,  two  additional 
cities,  Fresno  and  Bakersfield,  took  up  the  plan,  thus  caring  for  the 
southern  portion  of  this  region. 


10  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

Sacramento  remains  the  only  important  city  that,  as  a  municipality, 
has  taken  no  action  to  care  for  her  unemployed,  though  the  commis- 
sioners of  the  city  agreed  not  to  "pass  on"  her  indigent.  When  con- 
fronted with  the  necessity  for  action  in  caring  for  the  unemployed 
already  there,  the  city's  governing  board  declared  itself  helpless,  and 
the  relief  of  the  unemployed  was  left  entirely  to  private  citizens  and 
organizations.  While  powerless  to  relieve  the  immediate  situation 
they  agreed  that  an  attempt  will  be  made  to  conform  to  this  Commis- 
sion's plan  in  the  next  year's  efforts. 

Whether  due  to  mere  apathy  or  some  more  serious  reason,  this 
phase  of  Sacramento's  civic  life  should  give  concern  to  those  interested 
in  the  city's  welfare.  The  lack  of  adequate  organization  of  charity 
activities,  city  and  county,  has  been  commented  upon  by  the  State 
authorities.  An  actual  danger  confronts  the  city  in  the  possible 
unwise  use  of  the  "Land  Memorial  Fund."  If  distributed  as  at 
present  it  will  inevitably  tend  to  develop  a  class  of  paupers.  On  the 
other  hand,  should  the  fund  be  employed  in  a  manner  worthy  the 
donor's  purpose,  it  gives  Sacramento  an  opportunity  possessed  by 
but  few  cities  for  conservative  charity  work. 

(C)     Southern  California 

It  was  anticipated  that  southern  California  would  receive  its  full 
quota  of  unemployed.  In  addition  to  those  properly  classified  as 
residents  of  the  region  an  undue  proportion  of  the  migratory  class 
drifted  southward  as  the  rainy  season  advanced.  Early  in  January, 
San  Jose  railroad  officials  estimated  that  approximately  200  men, 
following  the  coast  line  southward,  passed  through  that  city  daily. 
The  railroads  of  the  San  Joaquin  Valley  supplied  passageway  for  the 
remainder  of  these  "uninvited  tourists." 

However,  claiming  that  Los  Angeles  had  no  serious  unemployment 
problem,  the  mayor  of  that  city  refused  to  take  action  .to  work  in 
harmony  with  the  other  cities.  Much  efficient  work  is  being  done  by 
the  city's  Free  Municipal  Employment  Bureau,  but  it  is  not  within 
the  province  of  such  a  bureau  to  create  work  even  for  the  purpose  of 
affording  relief  to  the  destitute.  The  actual  need  became  so  great  that 
the  Los  Angeles  chief  of  police  requested  the  establishment  of  a  munic- 
ipal lodging  house,  but  this  request  was  also  refused.  Our  Commis- 
sion was  further  informed  by  the  Los  Angeles  Associated  Charities 
that  such  provision  would  not  only  be  refused  by  the  city  but  that  this 
organization  would  endeavor  to  prevent  the  establishment  of  such  an 
institution  by  any  other  agency.  A  road  camp  maintained  in  one  of 
the  city's  parks  located  several  miles  from  Los  Angeles  furnished 
relief  for  all  the  city's  unemployed,  was  their  claim,  although  it 
furnished  accommodations  for  only  some  three  hundred  men,  while 


REPORT    ON    RELIEF    OF   DESTITUTE   UNEMPLOYED.  11 

conservative  estimates  placed  the  number  of  homeless,  wandering 
unemployed  men  in  Los  Angeles  at  from  five  to  seven  thousand. 

The  result  being,  except  for  the  splendid  response  made  by  the 
Los  Angeles  County  board  of  supervisors,  the  city  would  have 
experienced  a  crisis  not  at  all  to  her  credit.  As  shown  further  on  in 
this  report,  the  latter  officials  made  every  effort  to  meet  the  needs  of 
the  situation — and  were  very  successful. 

In  Pasadena,  the  city  commissioners  accepted  the  plan  proposed  by 
the  Commission  of  Immigration  and  Housing  in  toto,  appropriating 
money  to  bear  that  city's  burden. 

The  same  generous  response  was  made  by  Redlands  and  Riverside, 
in  the  latter  instance  the  city  and  county  working  together.  San 
Diego  likewise  liberally  appropriated  $10,000,  which  was  expended  in 
street  work. 

On  the  whole  the  southland  has  responded  admirably  to  the  trying 
demands  and  in  the  same  generous  spirit  that  characterized  practically 
all  the  region  to  the  north.  In  almost  every  community  the  Commis- 
sion's agent  found  a  spirit  of  co-operation  and  a  response  to  the  plea 
that  the  cities  should  unite  in  bearing  their  burdens  instead  of  con- 
stantly trying  to  escape  responsibility  by  ever  passing  the  burden  on 
and  on  in  a  vicious  circle. 


12  COMMISSION  OP  IMMIGRATION  AND   HOUSING. 


II.     SUMMARY  OF  REPORTS  FROM  VARIOUS   CITIES 

The  following  is  a  summary  from  cities  which  have  reported  on  the 
action  taken  by  them  in  co-operation  with  the  Commission  of  Immigra- 
tion and  Housing  and  other  cities  in  carrying  out  a  uniform  plan.  It 
indicates  the  manner  in  which  the  work  has  been  carried  on  and  shows 
the  results  obtained: 

1.  Character  of  organization  having  charge  of  work : 

Alameda :  Municipal    Employment   Bureau    under   the   city   clerk   and   relief 

committee  representing  the  city  council. 
Bakersfield :  Citizens'    Relief    Committee   supported    by    public   subscriptions 

and  Employment  Bureau  established  by  city  trustees. 
Berkeley :  Commission  of  Public  Charities  representing  the  city  council. 
Fresno :  Relief    Committee    representing    the    city,    county    and    individual 

support. 

Los    Angeles :  County    Board    of    Supervisors    represented    by    special    com- 
mittees and  Charity  Bureau. 
Oakland :  Municipal    Public    Woodyard    co-operating    with    the    Associated 

Charities  and  representing  the  city  council. 
Pasadena :  Relief  Committee  and  Associated  Charities  representing  the  city 

commissioners. 

Redlands :  City   officials   representing   the   city   council. 
Riverside :  Combination  of  city  and  county  interests. 
San  Francisco :  Relief  Committee  working  with  city  officials  and  Associated 

Charities. 

San  Jose :  Relief  Committee  and  city  organization. 
Stockton :  Municipal  Woodyard  and  Free  Employment  Bureau   representing 

San  Joaquin  County  Supervisors. 

2.  In   distributing  work   preference  has  been  given   resident  heads   of  families 

in  Alameda,  Berkeley,  and  San  Francisco.  In  the  following  cities  all 
heads  of  families  have  been  treated  on  the  same  basis :  Bakersfield, 
Fresno,  Los  Angeles  County,  Oakland,  Pasadena,  Riverside  and  Stockton. 

3.  Kinds  of  work  supplied : 

(a)  Heads  of  families: 

Alameda:   Street  work,  cleaning  up  vacant  lots,  clerical  work   (indexing 

health  records). 
Bakersfield :  Levee  work. 
Berkeley :  General. 

Fresno :  Street  work,  and  work  in  parks,  cleaning  up  vacant  lots. 
Los  Angeles  County :  Road  work  and  constructing  storm  drains,  making 

fire  breaks. 

Oakland :  Work  in  city  park  and  on  streets. 
Pasadena :  Work  on  streets  and  in  city  park. 
.Redlands :  Work  on  streets  and  in  city  park. 
Riverside :  Miscellaneous. 

San  Francisco :  Building  and  repairing  roads. 
Stockton :  Woodyard. 

(b)  Single  Men : 

Alameda :  Street  work   and   cleaning   up   vacant   lots. 

Berkeley :  Woodyard. 

Fresno :   Street  work. 

Los  Angeles  County :  Road  work. 

Oakland :  Woodyard. 


REPORT   ON    RELIEF    OP    DESTITUTE   UNEMPLOYED.  13 

Pasadena  :  Street  and  park  work. 
Redlands :  Street  and  park  work. 
Riverside :  Woodyard. 
San  Francisco :  Woodyard. 
Stockton  :  Woodyard. 

4.  Wages  Paid    (incomplete  report)  : 

(a)   Heads  of  families: 

Alameda  :  25  cents  per  hour. 

Fresno :  $2.40   per   day,    payment   being   made    in   grocery   orders,    and 
work  furnished  for  only  1£  days  each  week. 

Los  Angeles  County :  $2.00  per  day. 

Oakland  :  $2.00  per  day. 

Pasadena :  $2.25  per  day. 

Redlands :  $2.25  per  day. 

San  Francisco :  $1.60  per  day  of  8  hours — 3  days  a  week. 

Stockton :  $2.00  per  day,  payment  being  made  in  groceries. 
(6)    Single  Men   (incomplete  reports)  : 

Alameda :  25  cents  per  hour. 

Berkeley :  Two  meals  and  lodgings  for  varying  amount  of  work. 

Fresno :  Two  meals  daily  and  lodgings  for  3  half-day's  work  per  week. 

Los  Angeles  County :  $2.00  per  day. 

Oakland :  1  hour's  work  for  each  meal,  same  for  bed. 

Pasadena :  Meals  and  lodging  for  two  day's  work  per  week. 

Redlands :  $2.25   per   day. 

Riverside :  1  hour's  work  for  each  meal,  same  for  bed. 

San  Francisco  :  2  hours'  work  for  two  meals  and  bed. 

Stockton :  1  hour's  work   for  each   meal,  same  for  bed. 

5.  Approximate    amounts    of   money    expended    under   supervision    of   the    local 

authorities  and  sources  from  which  it  was  derived. 
Alameda:  December,    1914,    to   March    1,    1915,    $930,    of   which    $750   was 

appropriated   by   the   city   council   and   the   rest   was   raised   by   popular 

subscription. 
Bakersfield  :  December,  1914,   to  March  1,  1915,  $5,000  raised  by  popular 

subscription. 
Berkeley :  December,   1914,    to   April   1,   1915,   $1,400  appropriated   by   the 

city  council. 
Fresno :  December,  1914,  to  June  1,  1915,  $4,925  derived  as  follows : 

City $1,175 

County    i. 1,250 

Private  subscriptions 2,500 

Los  Angeles  County :  December,  1914,  to  March  1,  1915,  $79,806. 

Oakland :  December,   1914,    to   April    1,    1915,   $5,397,   appropriated  by   city 

council. 

Pasadena :  December,  1914,  to  March  1,  1915,  $2,500. 
Redlands :  December,   1914,    to   March  1,   1915,   $500  appropriated   by   city 

council. 

Riverside :  December,  1914,  to  March  1,  1915,  $1,000  appropriated  by  county. 
San  Francisco :  December,  1914,  to  March  1,  1915,  $27,301,  derived  as  follows : 

City  _' $16,700 

Private   subscriptions  10,601 

Stockton :  $3,141.53  appropriated  by  San  Joaquin  County. 


NOTE  :  The  reports  do  not  show  In  every  instance  the  number  of  days  a  week  work 
was  available.  It  can  be  assumed  that  usually  not  more  than  two  or  three  days  per 
week  was  the  average. 

NOTE  :  The  above  statements  do  not  include  the  amounts  expended  by  associated 
charities  and  other  private  organizations. 


14  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

6.  Work  done  by  cities  in  securing  outside  employment  (incomplete  reports)  : 
Alameda :    (a)   Men,  100  temporary  positions  found,  ranging  from  i  day  to  2 

weeks,  3  men  placed  permanently.     Estimated  wages  thus  earned,  $1,200. 

(6)    Women,  8  positions  found.     Estimated  returns,  $400. 
Bakersfield :  121  permanent  and  171  temporary  positions  found. 
Berkeley  :  Approximately  450  temporary  positions  and  30  permanent  positions. 
Fresno :  511  temporary  and  340  permanent  positions  found. 
Oakland :  30  temporary  positions  per  week  provided  until  first  of  year,  few 

since  that  date. 

Pasadena :  32  temporary  and  2  permanent  positions. 
Redlands :  200  temporary  and  40  permanent  positions  found. 
Riverside :  605  temporary  and  2  permanent  positions  found. 
Stockton :  103  temporary  and  25  permanent  positions  found. 

7.  Approximate  number  of  unemployed  directly  aided  by  relief  work  undertaken 

by  municipalities  December,  1914,  to  April  1,  1915  (incomplete  reports)  : 
Alameda :  200  given  employment  as  relief  work. 
Berkeley :  1,852  meals  and  1,301  lodgings  in  municipal  lodging  house   provided 

in  return  for  work. 
Fresno :  4,000  unmarried  men  given  meals  and  lodgings  in  municipal  lodging 

house   in   return   for  work    (10,834   lodgings   provided)  ;   200  men   with 

families  or  dependents  given  employment  at  wage  as  relief  work. 
Oakland :  1,381  unmarried  men  given  meals  and  lodgings  in  municipal  lodging 

house  in  return  for  work  in  woodyard  (35,681  meals  and  13,638  lodgings 

provided)  ;   275  men  with  families  or  dependents  given  employment  at 

wage  as  relief  work. 
San  Francisco :  6,295  unmarried  men  given  meals  and  lodgings  in  return  for 

work   in    woodyard    (only   partially   supported   by   city   appropriation)  ; 

1,503  men  with  families  or  dependents  given  employment  at  wage  as  relief 

work    (4,149  persons  being  dependent  on  these  men). 

8.  Productive  value  of  work  done  by  unemployed  in  return  for  relief  furnished 

by  municipalities    (incomplete  reports)  : 

Alameda :  Estimated  that  city  received  full  value.  Work  done  was  necessary 
and  of  permanent  value  to  city. 

Berkeley  :  Full  value  for  park  work.  Work  in  woodyard  paid  for  less  than 
half  of  meals  and  lodgings  furnished. 

Fresno :  Unemployed  fairly  earned  60  per  cent  of  the  relief  accorded  them  in 
street  and  park  work. 

Oakland :  Work  rendered  by  men  with  dependents  paid  city  in  full  for  amount 
expended  in  wages.  Cost  of  meals  and  lodgings  per  unmarried  man  was 
21  cents  per  day ;  productive  value  of  one  man's  labor  in  woodyard  was 
15  cents ;  cost  of  maintenance  6  cents  per  day  per  man. 

San  Francisco :  Approximately  full  value  rendered  city  in  work  on  roads  by 
men  with  dependents.  Cost  of  meals  and  lodgings  per  unmarried  man 
was  35  cents  per  day ;  productive  value  of  one  man's  labor  in  woodyard 
was  8  cents ;  cost  of  maintenance  was  27  cents  per  day  per  man. 

9.  Special  Difficulties  encountered  were : 

(a)  Lack  of  funds, 

(ft)  Too  heavy  a  burden  for  local  community. 

(c)  Lack  of  general  interest. 

(d)  Local  politics. 

(e)  Lack  of  charity  co-operation. 

(f)  Work  not  constructive. 

(ff)   Many  men  not  suited  for  kinds  of  work  supplied. 


REPORT    ON    RELIEF    OF   DESTITUTE   UNEMPLOYED.  15 

III.     BENEFITS   DERIVED   FROM  THE  CAMPAIGN 

(A)  The  most  evident  benefit  derived  from  the  winter's  work  has 
been  the  temporary  relief  of  distress.     More  than  100,000  persons  have 
directly  or  indirectly  shared  in  the  efforts  made  in  their  behalf  by  a 
comprehending  and  generous  group  of  cities  and  counties. 

(B)  By    receiving    work    at    a    time    when    their    resources    were 
exhausted  thousands  of  worthy  men  have  been  spared  the  ignominy  of 
accepting  charity. 

In  this  connection  attention  should  be  called  to  the  large  percentage 
of  our  unemployed,  both  resident  and  migratory,  who  are  fighting  to 
maintain  their  self-respect  by  persistently  resisting  charity. 

Conversely,  by  instituting  and  enforcing  a  real  work-test,  men  of 
weaker  moral  fiber  have  been  either  eliminated  or  regenerated  and 
aided. 

(C)  Not  the  least  valuable  of  the  benefits  derived  from  the  winter's 
work  is  the  prevalent  feeling  generated  among  the  unemployed  that, 
as  they  frequently  expressed  it,  "The  cities  are  playing  fair."     The 
relief  itself  has  in  many  cases  been  inadequate,  the  food  poor,  the  work 
distasteful,   but  beyond  these  unfortunate  phases  the  men  saw  the 
effort  made  in  their  behalf,  grasped  and  appreciated  the  motive.     The 
following   comment   typical   of   those   from   other   sections,   has   been 
received  from  a  local  relief  committee : 

"Judging  from  the  statements  made  by  those  whom  we  have 
assisted,  the  chief  value  in  doing  this  work  has  not  been  so  much 
in  the  money  that  was  received,  but  in  the  change  of  attitude  and 
a  spirit  of  hope  that  was  engendered  in  the  men,  through  the  fact 
that  the  city  was  taking  some  interest  in  their  welfare.  A  number 
of  them  stated  to  me  that  they  were  quite  despondent  at  first,  but 
because  of  the  interest  that  was  taken  in  them,  they  felt  they  had 
received  a  new  lease  on  life."- — Report  City  Clerk  Bosshard, 
Alameda. 

(D)  Notwithstanding  the  acute  and  widespread  economic  distress 
and  the  presence  in  our  State  of  the  largest  number  of  unemployed  in 
its  history,  California,  during  the  winter  months  just  past,  has  been 
notably  free  from  the  disorder  so  prevalent  in  the  State  during  the 
previous  winter  and  so  apparent  in  other  sections  of  the  country  during 
the  past  winter. 

This  propitious  condition  was  partially  the  result,  we  may  truthfully 
say,  of  the  sane,  prompt  and  generous  manner  with  which  the  various' 
public  and  private  organizations  have  responded  to  the  timely  appeals 
made  by  the  Commission  for  unity  of  action  in  meeting  the  impending 
crisis. 


16  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

That  a  highly  critical  condition  menaced  the  State  in  January  and 
February  was  the  belief  of  police  officers  and  others  whose  experience 
in  social  problems  enabled  them  to  intelligently  diagnose  the  portended 
situation.  Early  in  the  season  the  Commission's  representative  was 
informed  that  "demonstrations"  would  be  made  in  at  least  six  of 
California's  leading  towns.  While  such  threats  can  not  be  taken 
literally,  it  was  apparent  that  the  police  authorities  of  the  cities 
named  regarded  the  reports  with  alarm,  recalling  the  agitations  and 
war  riots  of  the  previous  winter.  It  is  therefore  a  source  of  justifiable 
gratification  to  note  instead  the  state  wide  satisfaction  which  prevailed. 
That  this  happy  result  was  everywhere  ascribed  to  the  work  done  by 
the  State  and  cities  in  behalf  of  the  unemployed  is  yet  another  cause 
of  congratulation. 

From  the  point  of  view  of  community  investment,  the  expense 
incurred  by  this  campaign  is  more  than  offset  by  the  lessened  cost  to 
the  State,  through  the  timely  reduction  of  crime,  estimated  by  police 
officials  at  25  per  cent  or  more. 

Not  merely  has  crime  been  reduced,  relief  afforded  and  physical 
suffering  minimized,  but  allegiance  of  the  better  element  of  the  unem- 
ployed in  constructive  efforts  to  improve  conditions  has  been  secured. 

The  deflection  of  this  better  element  proved  fatal  to  the  plans  of  the 
would-be  trouble-makers.  As  the  latter  aptly  expressed  it,  the  State 
and  cities  were  "stealing  their  ammunition."  Early  in  the  campaign 
men  representing  this  latter  class  informed  the  Commission  that  the 
execution  of  its  plans,  should  that  prove  possible,  would  prevent  all 
trouble.  The  accomplished  results  justifies  their  prophesies  and  more 
than  justifies  the  Commission's  hopes. 

(E)  The  fact  that  the  principal  cities  and  counties  have  joined 
harmoniously  in  concerted  action  along  a  given  line  will  likewise 
produce  good  results.  Unity  of  action  by  scattered  communities  in 
a  great  state  such  as  California  is  invaluable  and  highly  desirable,  and 
this  campaign  just  completed  should  form  a  precedent  excellent  for 
future  endeavor  in  work  of  this  kind  or  of  a  similar  character. 

An  immediate  benefit  derived  from  harmonious  action  and  the 
adoption  of  a  uniform  plan  was  the  impressive  effect  produced  upon 
the  element  disposed  to  trouble  making.  They  at  once  realized  their 
danger  in  inter-city  organization,  acting  through  the  State  as  a  clear- 
ing house.  This  no  doubt  contributed  materially  to  the  successful 
result  of  the  winter's  work. 

^  Moreover,  as  the  Commission  suggested  in  its  report  to  the  Governor, 
the  general  acceptance  of  responsibility  by  the  cities,  and  their  refusal 
to  ' '  float ' '  the  destitute  unemployed  on  and  on,  broke  up  or  discouraged 
the  organization  of  the  "unemployed  armies" — which  were  so  numer- 
ous during  the  winter  of  1913-14.  Such  "armies"  bring  little  or  no 


REPORT    ON    RELIEF    OP   DESTITUTE   UNEMPLOYED.  17 

good  to  their  own  members  and  they  are  potential  factors  in  collecting 
"  unemployables, "  breeding  ill  feeling,  and  producing  disorder  and 
actual  riots.  However,  when  the  communities  insist  on  forcing  unem- 
ployed men  from  city  to  city — not  toward  any  definite  field  of  employ- 
ment, but  merely  in  a  vicious  circle — it  is  but  natural  that  these  roving, 
desperate  men  should  organize  to  give  some  force  to  their  demands  for 
food  and  shelter.  The  adoption  of  a  general  plan  and  uniformity  of 
action  by  the  cities  has  demonstrated  a  fixity  of  purpose  and  a  deter- 
mination which  disheartened  the  wanton  trouble-makers  who  would 
organize  "armies"  to  take  advantage  of  the  old  unpreparedness  and 
helplessness  of  the  cities  that  supplied  temporary  shelter,  donated 
abundant  food,  but  applied  no  work-test,  and  only  implored  them  to 
"move  on"  to  the  next  town.  It  is  by  means  of  such  organization  of 
the  cities,  acting  through  some  state  board  as  a  clearing  house,  that 
the  "vicious  circle"  can  be  broken  and  lasting  results  achieved. 

In  this  connection  it  is  fitting  to  call  attention  to  the  manner  in 
which  the  different  cities  have  responded  to  the  action  of  a  state  com- 
mission offering  advice  concerning  local  matters.  With  a  single  excep- 
tion, instead  of  resenting  as  an  intrusion  the  proffered  assistance,  the 
local  authorities  expressed  appreciation  for  the  State's  interest  and 
accepted  the  Commission's  suggestions  in  the  same  spirit  in  which 
they  were  given. 

In  the  Appendix  of  this  report  extracts  of  letters  from  various  local 
officials  are  printed  in  order  to  show  the  feeling  with  regard  to  the 
value  of  this  organized  work  in  co-operation  with  the  State  authorities. 


18  COMMISSION  OP  IMMIGRATION  AND  HOUSING. 

IV.     OBSTACLES    ENCOUNTERED   IN   CAMPAIGN    FOR 
CO-OPERATION 

Obviously  the  campaign  to  secure  uniformity  of  action  in  dealing 
with  the  unemployment  relief  problem  was  seriously  handicapped  by 
a  late  start.  Although  the  uniform  plan  suggested  was  in  itself  simple, 
the  field  covered  was  large.  The  process  of  securing  co-operation 
between  widely  separated  units  is  always  slow.  If  the  work  of  the 
Commission  could  have  been  commenced  in  October  or  November,  far 
better  results  could  have  been  obtained.  The  Commission  could  have 
devoted  more  time  to  giving  definite  assistance  to  the  cities  and  the 
cities  could  have  made  preparations  before  the  crisis  was  upon  them. 
In  fact,  the  general  failure  to  plan  ahead  and  the  refusal  to  face  the 
problem  until  the  need  is  pressing,  is  the  most  pertinent  criticism  of 
charity  or  relief  work  in  municipalities.  Plans  can  not  be  perfected 
nor  the  work  well  organized  in  the  midst  of  the  stress  and  hurry 
brought  about  by  a  zeal  to  relieve  immediate  want  and  actual  misery. 
In  only  a  few  instances  did  the  Commission  find  that  preparations 
had  been  made  in  the  fall  for  meeting  the  inevitable  problems  of  the 
winter. 

In  addition  to  this  general  difficulty  there  were  a  few  concrete  things 
which  were  universal  obstacles  in  the  Commission's  campaign.  In  the 
hope  that  "planning  ahead"  may  be  encouraged  and  certain  pitfalls 
avoided  in  the  future,  these  principal  obstacles  and  defects  are  here 
mentioned  in  detail. 

(A)  No  general  provision  was  made  to  assist  and  furnish  relief 
to  unemployed  women,  this  being  left  entirely  to  local  charity  organ- 
izations.    The  Commission  had  to  undertake  this  relief  work  at  such 
a  late  date  and  on  such  short  notice  that  it  was  reluctant  to  suggest  a 
plan  which  would  cover  all  the  complexities  peculiar  to  relief  work  in 
this  field,  and  the  municipal  governments  made  provisions  for  relief 
work  only  among  unemployed  men.     Undoubtedly  this  is  a  defect  and 
cities  should  officially  undertake  to  organize  relief  work  for  the  throngs 
of  unemployed  women  as  well  as  the  men. 

(B)  There  was  little  or  no  opportunity  to  organize  local  private 
charitable    societies    under    a    uniform    plan    which    would    eliminate 
duplication  of  effort.     The  Commission  did  not  have  time  to  call  upon 
the  various  societies  and  bring  about  co-operation,  and  in  very  few 
cities  is  there  a  central  organization  or  clearing  house  through  which 
the  charity  societies  can  be  reached.     This  lack  of  co-ordination  is 
unfortunate  and  is  bound  to  result  in  some  wasteful  overlapping  of 
work. 

(C)  In   every   community   difficulty   was  experienced  in  securing 
subscriptions  from  private  sources  to  carry  on  relief  work.     This  lack 


REPORT   ON    RELIEF    OP    DESTITUTE   UNEMPLOYED.  19 

of  public  response  was  to  be  expected.  In  the  first  place,  there  are 
many  demands  upon  a  generous  Californian.  Again,  economic  condi- 
tions affected  not  only  the  unemployed  but  the  employers  and  the 
employed  as  well,  while  contributions  to  the  Belgian  Relief  Fund  gave 
reason  for  excuse  to  many.  However,  the  realization  that  the  work  Avas 
state-wide  and  not  merely  local  aided  materially  in  those  cities  where 
private  contributions  were  asked. 

(D)     Lack  of  Funds: 

Almost  without  exception  the  average  California  city  finds  its  regular 
activities  hampered  by  lack  of  resources.  Because  of  their  rapid 
growth,  the  regular  tax  levy  of  these  cities  ordinarily  proves  wholly 
inadequate.  It  becomes  therefore  a  serious  problem  to  appropriate 
$5,000  or  $10,000  for  an  unforeseen  contingency,  such  as  relief  work 
for  the  unemployed.  This  was  probably  the  most  serious  obstacle  in 
the  way  of  cities  that  were  desirious  of  assuming  their  just  responsi- 
bility in  giving  relief  to  the  unemployed.  Although  this  relief  problem 
has  been  recurring  annually  the  cities  have  made  no  effort  to  plan  for 
it  in  their  budgets. 

In  this  connection  the  Commission  desires  to  suggest  to  the  various 
municipalities  the  advisability  of  establishing  an  emergency  fund; 
this  to  be  used  for  wages  in  payment  of  work  given  the  unemployed  and 
such  funds  to  be  drawn  upon  only  when  a  given  number  of  unemployed 
within  the  municipality  indicates  an  emergency  has  arisen.  This 
matter  should  be  brought  before  the  municipal  authorities  at  once  while 
the  lesson  of  the  present  season  is  fresh  within  their  minds  and  while 
provisions  for  raising  such  funds  can  be  made. 

The  city  of  Alameda  has  just  furnished  an  object  lesson  in  this 
regard  by  adopting  an  initiative  measure  providing  for  the  creation  of 
a  " Relief  Fund"  annually  by  special  taxation.  The  city  authorities 
began  planning  in  March  to  meet  next  year's  problem  and  this  new 
ordinance  is  the  result.  It  is  estimated  that  a  fund  of  about  $2,000 
will  thus  be  provided  annually.  To  serve  as  a  sort  of  model  the 
ordinance  is  here  reprinted  in  full : 

'"Ordinance  No. new  series  creating  a  special  fund  known 

as  'Relief  Fund' ;  requiring  the  council  of  the  city  of  Alameda 
to  include  in  the  annual  levy  of  taxes  the  sum  of  one  (1)  cent 
upon  each  one  hundred  dollars  of  valuation  of  taxable  prop- 
erty in  said  city,  to  be  apportioned  to  such  fund;  and  pro- 
viding for  the  expenditure  of  the  moneys  in  such  fund." 

Be  it  ordained  by  the  people  of  the  city  of  Alameda  as  follows: 

SECTION  1.  There  is  hereby  created  a  special  fund  to  be  known 
as  'Relief  Fund,'  the  moneys  belonging  to  which  shall  be  provided 
for  and  raised  by  the  annual  tax  levy  as  hereinafter  provided. 


20  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

SEC.  2.  It  shall  be  the  duty  of  the  council  of  the  city  of  Ala- 
meda,  at  the  time  provided  by  law  for  the  determination  of  the 
rate  of  city  taxes  to  be  levied  and  collected  upon  the  assessed 
valuation  of  the  property  appearing  on  the  assessment  book  of  said 
city,  to  include  in  the  rate  so  to  be  determined,  the  sum  of  one  (1) 
cent  on  each  one  hundred  dollars  of  valuation  of  taxable  property, 
specifying  the  portion  of  the  whole  of  said  rate  so  included  as 
'Relief  Fund';  and  thereupon  in  levying  the  tax  to  provide  for 
raising  the  necessary  revenue  of  the  city  for  the  fiscal  year,  it  shall 
be  the  duty  of  said  council  to  levy  the  tax  at  the  whole  rate  as  so 
determined  by  it. 

SEC.  3.  The  moneys  in  said  'Relief  Fund'  shall  be  expended 
only  in  the  payment  of  claims  for  labor  and  other  personal  services 
on  public  work  authorized  by  said  council,  when,  in  its  judgment, 
the  providing  of  such  work  is  necessary  or  expedient  for  the  relief 
of  unemployed  or  indigent  residents  of  the  city  of  Alameda. 
Such  authorization  shall  be  by  resolution  duly  adopted  declaring 
such  necessity  or  expediency  and  specifying  the  public  work  to  be 
done  and  the  total  sum  to  be  withdrawn  and  expended  from  said 
Relief  Fund  under  said  authorization. 

SEC.  4.  Any  moneys  remaining  in  said  Relief  Fund  at  the 
end  of  any  fiscal  year  shall  be  turned  over  and  paid  into  the 
General  Fund." 

(E)  It  was  often  difficult  and  occasionally  impossible  to  interest  the 
public  officials  of  the  cities  and  bring  them  to  face  their  local  problems. 
It  was  found  to  be  impossible  to  obtain  co-operation  by  means  of 
correspondence,  personal  visits  by  the  agent  of  the  Commission  of 
Immigration  and  Housing  being  necessary.  Even  then,  promises  of 
co-operation  were  often  executed  in  but  a  half-hearted  manner,  the 
final  burden  falling  upon  a  few.  However,  this  condition  is  character- 
istic of  all  co-operative  action  and  must  not  be  considered  incidental 
to  this  work  alone. 

Local  or  personal  politics  occasionally  proved  of  more  importance 
than  so  minor  a  matter  as  unemployment  and  consequent  suffering. 
As  an  illustration :  After  a  thorough  discussion  with  the  Commission 's 
agent  concerning  the  local  needs  and  the  Commission's  proposed  plan, 
the  mayor  of  one  small  city  stated  that  he  believed  it  the  best  line  of 
action  and  that  there  was  need  for  action,  "but,"  said  he,  "you  see  we 
are  going  to  have  a  little  election  here  in  about  sixty  days  and  I  don't 
want  to  start  anything."  This  official  inertia  or  political  obstacle  is  one 
the  people  themselves  should  insist  upon  having  removed. 


REPORT   ON   RELIEF    OP   DESTITUTE   UNEMPLOYED.  21 

V.    SUGGESTIONS  FOR  FUTURE  ACTION 

With  the  knowledge  that  the  unemployment  relief  problem  will  be 
a  constantly  recurring  one,  it  is  evident  that  its  solution  can  be  more 
easily  effected  by  planning  along  broader  and  more  definite  lines  than 
has  been  possible  this  season.  "With  this  object  in  view  the  Commis- 
sion of  Immigration  and  Housing  offers  for  consideration  a  few 
suggestions  as  possible  lines  of  action. 

(A)  The  fundamental  purpose  of  any  action  taken  must  be  Con- 
structive Relief  Work,  carefully  planned  and  organized  ahead  of  time. 

Instead  of  delaying  until  another  crisis  comes,  immediate  steps 
should  be  taken  to  formulate  a  program  for  permanent  State  action. 
If  prompt  attention  is  given  the  impetus  now  felt  by  local  communi- 
ties, it  may  be  utilized  in  preparing  for  future  demands.  Suitable 
work  should  be  outlined,  funds  provided  and  definite  plans  formulated. 
Such  steps  will  obviate  many  of  the  difficulties  encountered  during  the 
past  season. 

Determined  action  should  be  taken  to  convince  the  central  west  and 
the  eastern  states  that  California  can  not  accept  responsibility  for  the 
support  of  non-resident  objects  of  charity  or  persons  liable  to  become 
such. 

Charity  itself  should  be  extended  only  in  cases  of  actual  necessity. 
Whenever  possible,  work  should  be  furnished  instead.  For  such  work 
funds  should  be  provided  for  some  form  of  general  tax  levy — certainly 
not  left  to  private  subscriptions  or  indiscriminate  giving  of  alms. 

Should  the  fact  become  generally  known  that  Work  not  Charity  was 
California's  slogan,  a  great  diminution  in  the  number  of  alms-seeking 
applicants,  both  resident  and  non-resident,  would  result. 

Less  "boosting"  and  saner  advertising  by  private  and  semi-private 
organizations  will  likewise  prove  a  .wholesome  and  commendable  aid 
in  reducing  the  influx  of  the  migratory  element. 

(B)  The  plan  should  be  statewide  and  the  State  should  participate. 
To  prove  most  effective  such  effort  can  not  be  limited  to  local  action. 

While  it  may  .be  desirable  that  the  city  or  county  provide  for  its 
resident  unemployed,  the  responsibility  of  caring  for  the  unemployed 
migratory  labor  is  somewhat  of  an  imposition  and  an  unmerited 
burden.  Although  many  of  these  men  do  not  properly  belong  to 
California,  the  State  should  share  the  burden  of  dealing  with  the 
problem  of  their  support  with  the  city  and  county.  At  any  rate  some 
state  board  should  serve  as  a  clearing  house  for  the  communities  in 
working  out  and  putting  into  operation  a  uniform  plan,  mutually 
beneficial  to  all  parties  concerned. 


22  COMMISSION  OF  IMMIGRATION  AND  HOUSING. 

(C)  Emergency  relief  work  for  the  unemployed  should  be  laid 
out  by  both  the  State  and  local  governments  each  year — to  be  done 
only  in  case  of  emergency  and  absolute  necessity. 

1.  This  work  should  be  generally  distributed  so  that  it  would  be 
accessible  to  the  unemployed  in  different  sections  of  the  State. 

2.  It  must  be  elastic — such  as  can  be  taken  up  or  conveniently 
discontinued  at  any  time  to  meet  the  varying  demands. 

3.  It  must  leave  labor  mobile.     Not  only  should  it  be  so  con- 
ducted as  to  prevent  the  attracting  of  labor  from  other  channels, 
but  it  should  be  of  such  a  character  that  it  will  cause  labor  to 
quickly  withdraw  whenever  employment  in  the  ordinary  lines  is 
available.     In  brief — it  should  serve  as  a  sort  of  reservoir  into 
which  excess  labor  may  be  diverted  and  from  which  it  will  freely 
flow  when  needed  elsewhere. 

4.  Idle  labor  from  outside  the  State  must  not  be  attracted  to 
California  by  this  work.  It  should  be  limited  primarily  to 
residents. 

5.  Examples  of  work  available  for  this  purpose: 
With  her  undeveloped  resources.  California  can  supply  abundant 
projects  meeting  all  requirements. 

(1)  Irrigation  projects. 

(2)  Levee  work  in  the  Sacramento  Valley. 

(3)  Drainage  canals,  as  in  the  Fresno  section. 

(4)  Road  building.     Work  on  state  highways  should  be  so 

arranged  as  to  make  it  applicable  wherever  possible 
for  unemployment  emergency  purposes. 

(5)  Forestry    work,    such    as   tree-planting,    construction    of 

fire-breaks  and  certain  forms  of  lumbering. 

In  conclusion  we  reiterate  that  this  campaign  was  in  no  way  intended 
to  solve  the  unemployment  problem  and  it  has  not  solved  California's 
unemployment  problem.  It  was  an  effort  to  relieve  immediate  want 
and  distress  caused  by  unemployment.  It  has  relieved  immediate  dis- 
tress; it  has,  in  many  instances,  prevented  the  forced  acceptance  of 
charity;  it  has  given  to  unfortunate  men  and  women  a  more  whole- 
some view  of  society;  it  has  prevented  disturbances  almost  certain  to 
have  come  without  such  action;  it  has  demonstrated  that  by  means  of 
co-operative  action  on  the  part  of  the  State  and  local  communities  such 
work  can  be  conducted  in  an  efficient  manner.  And,  what  may  be  the 
most  significant  result  of  all,  the  campaign  has  proven  that  this  experi- 
mental action  may  be  made  the  basis  of  permanent  constructive  work 
— this  work  to  be  initiated  by  the  State. 


REPORT    ON    RELIEF    OF   DESTITUTE   UNEMPLOYED.  23 

APPENDIX 


The  following  are  extracts  of  letters  written  by  the  officials  of 
various  cities  who  have  co-operated  in  the  Commission  of  Immigration 
and  Housing's  statewide  unemployment  relief  plan.  They  are  repro- 
duced here  to  indicate  the  attitude  of  municipalities  toward  inter-city 
and  city-state  co-operation.  These  communications  also  reflect  a  gen- 
eral conviction  that  the  local  governing  bodies  should  undertake 
unemployment  relief  work  as  one  of  their  official  duties,  rather  than 
leaving  it  to  a  few  private  organizations  and  citizens. 

I. 

Resolution  adopted  by  the  board  of  supervisors  of  Los  Angeles  County  on  April  19, 
1915: 

"Resolved,  that  it  is  the  sense  of  the  board  of  supervisors  of  Los  Angeles 
County,  that  the  plan  suggested  by  the  Commission  of  Immigration  and  Housing 
for  the  lessening  of  unemployment,  during  the  past  winter,  as  adopted  by  this 
board,  has  been  effective  in  lessening  want  and  crime,  and  has  been  carried  out 
with  the  general  approval  of  the  community." 

II. 

Extract  of  a  letter  from  the  chief  of  the  police  department  of  San  Francisco : 

"It  is  a  pleasure  to  acknowledge  the  excellent  results  that  have  already  been 
noted  throughout  the  State  of  California  as  a  result  of  your  Commission's  study 
and  attention  to  the  unemployed  problem  and  the  energy  you  have  displayed  in 
handling  the  many  critical  situations  that  have  arisen. 

In  San  Francisco  there  is  already  apparent  a  defined  feeling  of  satisfaction  in 
quarters  that  heretofore  recked  with  the  many  complications  that  invariably 
attended  an  insiduous  unemployed  situation. 

Your  work  in  ameliorating  and  alleviating  the  condition  of  the  unfortunates 
who  have  heretofore  suffered  from  lack  of  employment  contributes  greatly  to  the 
comparative  lack  of  crime  in  San  Francisco,  and,  I  am  sure,  innumerable  other 
cities  in  the  state." 

III. 

Extract  of  a  letter  from  the  chief  of  the  police  department  of  Berkeley : 

"I  beg  to  advise  that  it  is  my  opinion  that  caring  for  the  migratory  laborers, 
as  well  as  for  the  migratory  undesirables,  with  proper  lodgings  and  food,  has 
decreased  crime  in  this  city  fully  twenty-five  per  cent. 

It  is  my  opinion  that  there  should  be  established  in  every  city  a  voluntary 
farm  or  similar  place  where  those  who  desire  to  work  may  find  employment  at  a 
small  compensation  sufficient  to  provide  for  their  needs." 

IV. 

The  following  is  an  extract  from  a  letter  from  the  city  clerk  of  Alameda,  who 
was  in  charge  of  the  unemployment  relief  work  in  that  city  : 

"Judging  from  the  statements  made  by  those  \vhom  we  have  assisted,  the  chief 
value  in  doing  this  work  has  not  been  so  much  in  the  money  that  was  received, 
although  that  has,  of  course,  been  a  very  important  matter,  but  in  the  change 
of  attitude  and  a  spirit  of  hope  that  was  engendered  in  the  men,  through  the 
fact  that  the  city  was  taking  some  interest  in  their  welfare.  A  number  of  them 
stated  to  me  that  they  were  quite  despondent  at  first,  but  because  of  the  interest 
that  was  taken  in  them,  they  felt  they  had  received  a  new  lease  on  life. 

The  council  has  realized  the  value  of  assisting  the  unemployed  and  it  is  about 
to  place  before  the  people  an  initiative  ordinance  to  be  voted  on  by  them  which 
will  require  the  council  each  year  to  place  one  cent  on  each  one  hundred  dollars 


24  COMMISSION  OP  IMMIGRATION  AND  HOUSING. 

valuation  in  the  budget  for  the  express  purpose  of  assisting  the  unemployed. 
That  will  give  us  about  $2,000  a  year,  considerably  more  than  what  we  had  this 

past  w^JJiSJ*.* 

*  that  results  arrived  at  have  been  well  worth  the  time 

on  the  work." 


.,.'•  '  ••    V.VV'  V. 

The  following  is  an  extract  from  a  letter  from  the  chief  of  the  police  department 
of  Fresno  : 

"Our  segregated  list  shows  there  was  an  increase  of  crime  but  will  also  have 
to  take  into  consideration  that  the  population  is  much  greater  now.  Perhaps 
there  would  have  been  a  greater  increase  had  the  city  not  made  arrangements 
to  house  and  feed  once  a  day  a  great  many  of  the  unemployed.  Often  at  night 
there  was  as  many  as  two  hundred  taken  care  of  by  the  Municipal  Lodging 
House  and  Salvation  Army." 

VI. 

The  following  is  a  portion  of  a  letter  addressed  to  the  Commission  of  Immigration 
and  Housing  by  the  superintendent  of  the  Municipal  Woodyard  and  Lodging  House 
in  Stockton  : 

"Your  work  in  Stockton  in  connection  with  the  unemployed  was,  in  my 
opinion,  most  satisfactorily  handled.  Your  time  and  efforts  were  greatly 
appreciated  by  this  community  and  have  met  the  approval  of  the  county  board 
of  supervisors,  and  the  police  department  of  this  city.  I  am  authorized  by  the 
chief  of  police  to  say  that  it  has  helped  to  do  away  with  the  professional  beggars 
and  a  great  majority  of  the  petty  thieving  which  is  done  by  men  who  are  hungry 
and  in  great  distress." 

VII. 

The  following  is  a  communication  received  from  the  chief  of  the  police  department 
of  Riverside  : 

"Unemployed  program  as  carried  on  by  your  Commission  heartily  approved 
by  local  authorities  as  beneficial  and  constructive.  Am  sure  that  crime  has  been 
reduced  twenty-five  per  cent." 

VIII. 

The  following  is  an  extract  from  a  letter  addressed  to  the  Commission  by  the 
chief  of  the  police  department  of  Pasadena  : 

"There  has  been  a  very  noticeable  decrease  in  the  number  of  calls  that  have 
been  sent  into  this  office  by  people  who  have  been  held  up  by  street  beggars, 
and  I  think  I  am  safe  in  saying  that  crime  of  all  kinds  has  diminished  at  least 
one-quarter,  as  compared  with  the  month  of  March,  of  this  year. 

The  crime  perpetrated  in  this  city  during  this  winter  is  far  below  our  most 
sanguine  expectations,  and  I  feel  that  this  is  due  in  a  great  measure  to  the 
good  work  accomplished  by  the  Commission  of  Immigration  and  Housing  and 
that  the  Commission  is  deserving  of  our  most  hearty  thanks  for  this  work  of 
prevention  of  crime,  and  I  am  heartily  in  favor  of  its  being  continued  along  the 
same  lines." 


J.£.f?.U.LH.E™  REGIONAL  LIBRARY  FACILITY 


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MAR  t  6  1991 


